Annex C - APEC Guidelines on Ensuring Tourist Safety

Introduction & Rationale

Tourism is an important economic activity that provides sustained contribution to the economic growth in the APEC region.  According to the World Travel & Tourism Council, the direct contribution of travel and tourism to the combined GDP of APEC members amounted to 2.7 percent in 2011 while the total contribution was estimated at 8.3 percent, if the indirect and induced impacts are factored into the calculations.  The industry directly supported 43.7 million jobs (3.1 percent of total employment) in 2011, but accounting for the jobs indirectly supported will yield the estimate of the total employment generation of 120.3 million jobs (8.4 percent of total employment).

Tourism provides direct and indirect channels for sourcing economic growth through cross-border trade and investment.  In this sense, the industry is an important driver towards the Bogor goals, APEC core mission of integrating Asia Pacific economies.  Tourism in the APEC region accounts for a quarter of all international travel and a third of the total international travel-related expenditure.  Three quarters of outbound travel in APEC are intra-regional.  The key component of the direct contribution of tourism to the economic output is visitor exports, which generated 4.3 percent of total exports from APEC economies in 2011.

Retaining the role of tourism as a major engine to economic growth and integration requires a variety of enabling measures for the infrastructure development, increased private sector investment, new education and employment opportunities, coupled with removing barriers to tourist flows.  Not less importantly, ensuring that the tourism potential is fully tapped requires establishing a safe environment for all tourists on a non-discriminating basis.  Away from their home economies and exposed to increased threats to their life, health, or personal integrity, foreign tourists may be a particularly vulnerable group as a result of disrupted communications and lack of knowledge of local customs and laws.

Safety is an essential property of the tourist product and, in this sense, is intertwined with the quality of tourist service.  Ensured safety signifies higher quality of tourist service, but it is the commitment to the high quality standards at each point of the complex tourism service supply chain that may ultimately guarantee the intended safety.

APEC region and the tourism industry in particular continue to be prone to emergencies caused by natural, man-made, or other hazards.  These challenges need to be managed adequately, with national emergency structures and processes designed with clear understanding of the special needs and concerns of the travel and tourism sector.  The following Guidelines are offered to the tourist administrations and other relevant authorities of APEC member economies to stress the importance of safety and risk management, assist in identifying best practices and encourage closer cooperation.  The Guidelines are indicative references that may be useful to members in sharing or adopting the best practices and design their domestic measures to better protect tourists at home and abroad.

Context

APEC members are cognizant of the existing international instruments pursuing safety and respect of tourists’ interest and rights.  Subject to their individual circumstances, the tourist administrations of member economies should continue to work with the respective tourist associations and tour operators to enhance their understanding of these instruments, in particular, the UNWTO Global Code of Ethics for Tourism (Articles 1, 6, and 8).

Subject to their multilateral commitments, APEC members should also contribute to the ongoing drafting of a UNWTO Convention on the protection of tourists and tourism service providers with a view of producing an internationally recognised document containing robust provisions and recommendations.

APEC Tourism Working Group should continue to explore the utility of engagement with other APEC fora, including Counter-Terrorism Task Force, Emergency Preparedness Working Group, and Health Working Group, on issues pertaining to safety of tourists.  Member economies may wish to take into consideration the existing security/safety frameworks developed by those APEC sub-fora, e.g., APEC Guidelines on Functioning Economies in Times of Pandemic (2007) or APEC Consolidated Counter-Terrorism and Secure Trade Strategy (2011). 

While a number of strategies and frameworks to ensure safe travel and tourism were devised at the multilateral level and within APEC, there is room for more targeted action by APEC economies as they strive to establish an economically integrated, robust, and secure community in the Asia Pacific.

Action items for the APEC economies

1.  Pre-travel arrangements

A variety of risk management systems are in place in APEC economies which may have proved their efficiency in providing assistance to tourists in time of emergencies. 

• Member economies should  encourage risk assessment and management by the private sector before the travel commences through comprehensive insurance schemes and financial guarantees of the travel organisers.  In the event of emergency or non-performance of a tourist service provider (including travel organiser insolvency), the travel organiser, in cooperation with the relevant authorities of the tourists’ economy of origin and the host economy, chould be therefore able to provide assistance which will cover essential transportation and repatriation services, accommodation and meals, medical treatment, legal services, and rescue operations in case of terrorist attacks or natural disasters.
• National tourist administrations should compile and exchange best practices of establishing appropriate regulations ensuring comprehensive protection of tourists .through which may include insurance schemes with the minimised impact on the price competitiveness of tourist product.

2. Travel advisories

Providing timely and verified information on risks and security threats to tourists is essential to building a systemic approach towards tourists safety.  Travel advisories typically offer information about safety and security issues, and practical tips on health, local laws, local customs, as well as entry and exit requirements. 

• APEC members are encouraged to maintain a transparent and balanced mechanism for generating travel advisories which to the highest extent possible should conform to the UNWTO Guidelines in Travel Advisories (2005) and Recommendations on the Use of Georeferences, Date and Time in Travel Advice and Event Information (2011).
• Travel advisories should be accurate and avoid ambiguous language, bias, political, and commercial considerations.  Information contained in travel advisories should be published on a central, easy-to-use, and widely known website, where these would be regularly updated.  Travelers should be encouraged to consult the advisories prior to their departure.
• Public announcements of threats and risks in travel advisories should, whenever possible, be specific about the geographical location of the problems and include maps and indications of distance.  Online mapping of all travel risks and threats allowing for feedback from tourists is particularly useful.
• It is a good practice to grade travel advisories across various clearly defined levels.  A reasonable grading scheme could include concise wording which contains clear advice, e.g., “Exercise normal safety precautions,” “Exercise a high degree of caution,” “Reconsider your need to travel,” or “Do not travel”.
  
• Member economies should consider making the travel advisories a part of a larger system of inter-agency coordination and communication with the tourism business community.

3.  Identifying and locating tourists in times of emergency

Ability to identify and locate tourists in times of emergency is critical to providing them with the necessary assistance in a timely fashion.

• In order to facilitate the identification of tourists in emergency areas, relevant authorities in APEC economies should consider putting in place administrative arrangements to be able to get quick access to the data on tourists from the tour operators, without compromising the data privacy.
• More importantly, with the advantage of increased information technology sophistication and access to Internet, social media, and various means of communication, APEC members should consider developing online travel registration tools for collecting data on outbound tourists (Smart Traveller programs).  Travel registration should be voluntary and available on a widely known and well positioned website preferably linked to the travel advisories service.  Relevant authorities should ensure the privacy of the data which could be used to contact and locate the registered tourist in case of emergency.
• APEC economies are encouraged to take practical steps to exchange best practices/models for establishing online registered travel services.

4.  Government communications and interagency coordination

Tourist product involves a complex chain of service providers, where each provider should be responsible for safety/quality. But  a key, coordinating role in ensuring safety  can be performed by the governments (relevant agencies) and tourism industry associations.

• APEC members should work towards maintaining efficient communication at various levels:

  (a)        interagency coordination within economy, involving ministries of foreign affairs and tourism, enforcement and emergency management agencies, tourism business associations;

  (b)        coordination of relevant agencies between APEC economies; and

  (c)        communication of relevant agencies or local jurisdictions with the tourists in emergencies.

• APEC economies should explore closer cooperation among their relevant agencies to enhance the information exchange on security issues pertaining to tourism.

5.  Regulation of service providers

Transport services

• Relevant regulatory authorities should exercise oversight of transportation service providers so their operation is properly licensed and vehicles and services meet essential safety standards.  An indicative list of these standards may comprise:

  (a)        compulsory use of seat belts;

  (b)        availability of space navigation equipment (GPS or other);

  (c)        driving instructions with strong language on speed and driving time limitations;

  (d)        compulsory requirement for a second driver in case of long distance journeys;

  (e)        restriction on travel at night time, etc.

Leisure/recreational services

• Relevant regulatory authorities should pay particular attention to ensuring compliance of service providers with the safety requirements at swimming, diving, water skiing, and similar facilities. Such recreational facilities where tourists may be exposed to higher-than-average hazard should be fully prepared to provide for the safety of tourists.  Tourist guide certification authorities or relevant industry associations should apply strict criteria for professional training and skills of guides if the travel takes place in the areas of heightened risk to life and health of tourists.

6.  Insolvencies and dispute settlement 

Member economies  should work with tourist industry players through reviewing regulations, enforcement or strengthened commitments of the tourist business associations to ensure that in case of insolvency of the travel organizer the tourists are not subject to penalties, threat to personal integrity or integrity of their belongings or victimised in any way. All disputes arising from insolvency of the travel organizer should be settled between businesses engaged in providing tourist product with the mediation of the relevant government agencies  where appropriate

7.  Enforcement

• In case of threat or damage to health or personal integrity, foreign tourists must be able to seek protection from the host economy’s enforcement agencies or indemnity through the host economy’s courts.
• Given the significant economic contribution of tourism, APEC economies should consider establishing special units within their enforcement agencies to deal with crimes against tourists at the most popular tourist destinations.
• Host economy’s enforcement agency should be open to sharing the necessary information with the enforcement agency of the tourists’ economy of origin.

Note on implementing the Guidelines

Russia suggests APEC economies consider practical and focused action to implement various provisions of the Guidelines.  For initial discussion, Russia has the following considerations:

1.  To implement Guideline 3, “Identifying and locating tourists in time of emergencies,” Russia suggests the exchange of best practices/models for establishing online registered travel services (Smart Traveller Programs) may take the form of an APEC capacity building project.  Members where voluntary travel registration services are operational may wish to share their experiences with other APEC economies.  The outcome of the project may facilitate the uptake of this best practice by other economies.

2.  To implement Guideline 4, “Government communications and inter-agency coordination,” Russia urges the members to explore the feasibility of establishing an APEC network of emergency contacts for tourism.  This will probably require designating national contact points in the national tourism administrations who may be responsible for:

• verifying and circulating early warning information on any kind of emergencies which may affect both inbound and outbound tourists;
• ensuring the accuracy and timeliness of travel advisories;
• maintaining online communication channel in case of emergencies and assisting intra- and interagency communications;
• address any other issues pertaining to information on tourist safety and security.

The contact points within this network may be expected to maintain close coordination with the respective tourist business associations.